地方政府的土地经营能力——基于土地产权结构和经营策略的分析

Land Property Right Structure, Operation Strategy, and Local Governments' Land Operation Capacity

从土地产权结构和经营策略两个维度,引入地方政府土地经营能力的分析概念并解释其来源和形成过程,以此拓展已有研究中的"动力-过程"分析框架。地方政府的土地经营能力由一组权利构成:土地规划权、土地征收储备权、土地经营权。这些权利内生于中国的土地公有产权结构,并借助一系列具体制度安排派生而来,其行使和运作在当前是一个策略性过程。地方政府借助基于规划权和发展权所建构的"公共利益"策略和基于经营权的"分类经营"策略,极大地强化了地方政府的组织和资本动员能力,进而为地方政府持续、高效地实施土地经营行为奠定了基础。

From the two dimensions of land property right structure and operation strategy,we will introduce the concept to analyze local governments’land operation capacity and explain its origin and forming process,by which we can expand the"dynamic-process"analytical framework in existing studies.Local governments’land operation capacity consists of a set of rights:land planning right,land acquisition and reserve right,and land operation right.These rights are inherent in China's property right structure of land public ownership and derive with the help of a series of specific institutional arrangements.Their exercise and operation are currently a strategic process.With the help of"public interest"strategy based on the planning right and development right and of the"classified operation"strategy based on the operation right,local governments have greatly strengthened their organizing capacity and capital mobilization capability,which then will lay a foundation for local government to implement the land operation continuously and efficiently.